Australian Animal Welfare Strategy (AAWS) and National Implementation Plan 2010-14

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​ISBN: 978-1-921575-29-7

The Australian Animal Welfare Strategy (AAWS) has been developed to outline directi​ons for future improvements in the welfare of animals and to provide nati​onal and international communities with an appreciation of animal welfare arrangements in Australia. It was jointly developed by the Australian Government, state and territory governments, industry and the community. The production of the AAWS was coordinated by the Australian Government Department of Agriculture, Fisheries and Forestry on behalf of the Primary Industries Standing Committee. The Primary Industries Ministerial Council endorsed the AAWS in May 2004 and the first National Implementation Plan for the strategy in May 2006.

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Australian Animal Welfare Strategy

Vision: All Australians value animals and are committed to improving their welfare.
Mission: To deliver sustainable improvements in the welfare of all animals.

Australia is rated as equivalent to or better than international benchmarks, following formal evaluations.

World Organisation for Animal Health and other international organisations continue to seek Australian expertise.

Forecast AAWS expenditure, 2010-14 (total = $4 007 000)

$1 167 913 (29%)

$528 818 (13%)

$1 927 269 (48%)

$383 000 (10%)

Estimated additional stakeholder contributions (total = $4 530 623)

$1 718 999

$970 500

$1 47xc6 124

$365 000

Acknowledgments

The Australian Animal Welfare Strategy (AAWS) relies on dedicated people who have a commitment to improving the welfare of Australian animals. This dedication is illustrated by the way that people from different sectors actively contribute, engage, exchange information and debate the changes needed to make a real difference to animal welfare in Australia.

The strategy has evolved since 2004 as a result of the need to update content and simplify both the strategy and the supporting National Implementation Plan. The revision was led by the AAWS Advisory Committee, with important input from a meeting of approximately 120 stakeholders in July 2010. These stakeholders were drawn from industry, research organisations, community animal welfare organisations, professional associations, and the Australian, state and territory governments. The contribution that all parties have made to this revised strategy is recognised and gratefully acknowledged.

Acronyms

AAWS — Australian Animal Welfare Strategy CSIRO — Commonwealth Scientific and Industrial Research Organisation DAFF — Australian Government Department of Agriculture, Fisheries and Forestry OIE — World Organisation for Animal Health PIMC — Primary Industries Ministerial Council RSPCA — Royal Society for the Prevention of Cruelty to Animals

Animal welfare activities within Australia require the commitment and support of many organisations. A list of participants in AAWS phase 1 is provided in
Attachment 4.

Executive summary

Animals are socially, culturally and economically important for Australia. They are core to our national identity, feature on our currency and are widely adopted as logos for our sporting teams. They provide us with companionship, recreation, entertainment, assistance, health and ecological services, and food and fibre. Animal and related industries generate many billions of dollars of economic activity and tens of thousands of jobs across rural, regional and urban Australia. The welfare of animals and the welfare of humans are closely linked.

Animal welfare reflects the ethical imperative and social expectation that any use of animals for the benefit of humans should minimise suffering of the animals involved. Welfare is related to health and wellbeing. However, it extends beyond survival to also consider the quality of an animal’s life.

The Australian Animal Welfare Strategy focuses attention on key animal welfare issues and coordinated investments to deliver sustainable improvements. The strategy has relevance for the entire community. It covers all sentient animals—that is, those with a capacity to experience suffering and pleasure. Sentience is the reason that welfare matters.

Achievements to date

The strategy was originally endorsed by the Primary Industries Ministerial Council in 2004, and the National Implementation Plan was endorsed in May 2006. Achievements under the strategy to date include:

the development of a solid framework for stakeholder consultation

identification of 23 elements for consistency across state and territory legislation and agreement from the jurisdictions to implement them

review and analysis of animal welfare issues and capacity across the six animal use sectors, and in the areas of communications, education and training, and research and development

endorsement of a policy to move from voluntary model codes of practice for the welfare of livestock to national standards and guidelines, with greater consistency in regulation

agreement to extend the development of standards and guidelines to nonproduction animals

endorsement of new Australian animal welfare standards and guidelines—land transport of livestock

development and publication of a model for assessing the humaneness of vertebrate pest control strategies

the successful AAWS International Animal Welfare Conference in 2008.

Phase 2

The strategy was updated in 2010, following an independent review and extensive stakeholder consultation. Phase 2, which will build on the achievements to date, will run from 1 July 2010 to 30 June 2014.

The strategy’s vision is that
all Australians value animals and are committed to improving their welfare. Its mission is to deliver sustainable improvements in the welfare of all animals.

The strategy has four primary areas of work: animals, national systems, people and international. The expected benefits that will flow include the following:

Animals will experience better levels of care and management.

Governments and others investing in the development and implementation of animal welfare policies and systems will see greater efficiency and value through streamlined processes and reduced duplication.

Animal welfare issues will be subjected to balanced debate and consideration within the community.

Australia’s animal welfare systems, expertise and international reputation will be enhanced through active international engagement and partnerships.

The strategy provides a national framework to identify priorities, coordinate stakeholder action and improve consistency across all animal use sectors. It seeks to build on Australia’s current arrangements, including state and territory legislation, standards, guidelines, codes of practice, industry quality assurance programs, education and training, and research and development. It acknowledges the importance of broad engagement with industry, governments, professional associations, service providers, researchers and welfare organisations to accurately assess issues and develop robust solutions.

Implementation of the strategy is a shared responsibility, which relies on the commitment of time, resources and funding from stakeholders across all sectors and from all levels of government. In particular, the strategy will look to the state and territory governments, who have responsibility for developing, implementing and enforcing animal welfare policies and legislation, to articulate how their current and proposed activities are consistent with the strategy and can support its goals and objectives. The Australian Government has committed approximately $4 million to phase 2 of the strategy. This funding will be used for specific joint initiatives to address priority issues at industry, sectoral and national levels. Co-contributions to activities under the strategy will continue to be sought from governments and other stakeholders.

Governance

The strategy is overseen by a skills-based advisory committee, which is responsible for driving its implementation. In conjunction with the national Animal Welfare Committee, the Advisory Committee will develop and secure agreement to an annual work plan and commitment of resources to activities that support the strategy’s objectives. The Advisory Committee and Animal Welfare Committee will also provide an annual report of progress against the strategy to ministers, governments and other stakeholders. National agreement to the strategy is provided through its endorsement by the Primary Industries Ministerial Council.

Technical working groups will continue to operate for each of the six key categories of animal use:

livestock and production animals

companion animal

aquatic animals

animals used in research and teaching

animals used for work, recreation, entertainment and display

native, introduced and feral animals.

Three additional groups provide tactical advice on the common issues of communications, education and training, and research and development.

The sectoral groups are responsible for applying the national priorities and overall strategic goals and objectives at an operational level, identifying projects and providing advice on issues. Members of the working groups will provide a connection between the strategy and stakeholder networks by supporting promotion of activities, outcomes and achievements, and facilitating feedback.

Australian Government funding for the strategy is approved by the Minister for Agriculture, Fisheries and Forestry, and administered by the Australian Government Department of Agriculture, Fisheries and Forestry. The department coordinates implementation and reporting of the strategy on behalf of the Advisory Committee and stakeholders.

National Implementation Plan

The National Implementation Plan has been developed using a program logic framework, which shows a series of consequences, not just events. It seeks to make clear the cause-and-effect relationships between activities, outputs, outcomes and benefits. This framework also supports program monitoring, evaluation, performance management and reporting. Implementation of the strategy is a shared responsibility.

Program reporting is an essential component of governance, stakeholder engagement and communications. Regular reports on activities, achievements and progress under the strategy will be prepared and distributed to stakeholders, and information will be made available online through websites that are accessible to the public or to participants only. An annual stakeholder workshop will provide opportunities to report progress, seek feedback, affirm priorities and strengthen networks.

Part 1: The Australian Animal Welfare Strategy

This section presents the Australian Animal Welfare Strategy, the issues it aims to address, and its goals and priorities. The section covers policy objectives, primary areas of effort and expected achievements between 2010 and 2014.

The strategy has been developed using a combination of an outputs–outcomes–benefits framework and a program logic model to clearly identify how the investments and activities undertaken will deliver results, the assumptions that have been made about the connections and pathways between investments and results, and the resources needed to achieve the identified aims.

Introduction

Key points:

Animal welfare means how an animal is coping with the conditions in which it lives.

Sentience is the reason that welfare matters.

The strategy is based on a national consultative approach and a firm commitment to achieving sustainable improvements.

All Australians have a duty of care to ensure that the welfare of animals is maintained and protected.

The strategy was initially endorsed by the Primary Industries Ministerial Council in May 2004.

Animal welfare is of social and strategic importance. The welfare of animals and the welfare of humans are closely linked. At the same time as expecting a better quality of life for themselves, people in modern society also expect that the quality of life should improve for companion, livestock, working and wild animals.

Australia accepts the agreed international definition of animal welfare from the World Organisation for Animal Health (OIE):

Animal welfare means how an animal is coping with the conditions in which it lives. An animal is in a good state of welfare if (as indicated by scientific evi dence) it is healthy, comfortable, well nourished, safe, able to express innate behaviour, and if it is not suffering from unpleasant states such as pain, fear, and distress. Good animal welfare requires disease prevention and veterinary treatment, appropriate shelter, management, nutrition, humane handling and humane slaughter/killing. Animal welfare refers to the state of the animal; the treatment that an animal receives is covered by other terms such as animal care, animal husbandry, and humane treatment.1

The Australian Animal Welfare Strategy (AAWS) is a national approach that focuses attention on key animal welfare issues and investing in sustainable improvements. The strategy covers all sentient animals—that is, those with a capacity to experience suffering and pleasure—and has relevance for the entire Australian community.

Sentience, which implies a level of conscious awareness, is the reason that welfare matters. The management and treatment that sentient animals receive should not inflict unnecessary suffering. As guardians, custodians and caretakers, all Australians have a duty of care to ensure that the welfare of animals is maintained and protected. Animal husbandry and management practices must continue to evolve and improve as society’s expectations change.

The community has a deep regard for animals. Animal stories regularly feature in the mass media and provide a basis for popular television shows, documentaries and movies. Animals are part of our national identity, feature on our currency and are widely adopted as logos for our sporting teams. Animals also form a central part of the Australian economy and generate wealth and employment across rural, regional and urban Australia through agriculture, tourism, exhibition and recreation.

The AAWS provides a national framework to identify priorities, coordinate stakeholder action and improve consistency across all animal use sectors. It seeks to build on Australia’s current arrangements, including state and territory legislation, standards, guidelines, codes of practice, industry quality assurance programs, education and training, and research and development. It also acknowledges the importance of broad engagement with industry, governments, professional associations, service providers, researchers and welfare organisations to accurately assess issues and develop robust solutions.

The vision of the AAWS is:

All Australians value animals and are committed to improving their welfare.

Its mission is:

To deliver sustainable improvements in the welfare of all animals.

Outcomes and benefits expected to flow from the strategy have been identified across four primary areas of work: animals, national systems, people and international. The benefits include the following:

Animals will experience better levels of care and management.

Governments and others investing in the development and implementation of animal welfare policies and systems will see greater efficiency and value through streamlined processes and reduced duplication.

Animal welfare issues will be subjected to balanced debate and consideration within the community.

Australia’s animal welfare systems, expertise and international reputation will be enhanced through active international engagement and partnerships.

All stakeholders in the strategy are firmly committed to achieving continuous improvements in animal welfare and addressing key animal welfare issues through coordinated efforts and investments. The strategy:

provides a direction for future animal welfare policies

involves a national consultative process

recognises the various roles and responsibilities of key community, industry and government organisations and acknowledges their valuable contributions

The AAWS was originally endorsed by the Primary Industries Ministerial Council in 2004, and the first National Implementation Plan was endorsed in May 2006. Achievements under the strategy to date include:

the development of a solid framework for stakeholder consultation

identification of 23 elements for consistency across state and territory legislation and agreement from the jurisdictions to implement them

review and analysis of animal welfare issues and capacity across the six animal use sectors, and in the areas of communications, education and training, and research and development

endorsement of a policy to move from voluntary model codes of practice for the welfare of livestock to national standards and guidelines, with greater consistency in regulation

agreement to extend the development of standards and guidelines to nonproduction animals

endorsement of new Australian animal welfare standards and guidelines—land transport of livestock

development and publication of a model for assessing the humaneness of vertebrate pest control strategies

the successful AAWS International Animal Welfare Conference in 2008.

The strategy was updated in 2010, following an independent review and extensive stakeholder consultation. Phase 2, which will build on the achievements to date, will run from 1 July 2010 to 30 June 2014.

Case study:

Companion animals

Australians own around 33 million pets and the companion animal sector is worth $6 billion. This highlights the enormous task the Companion Animals Working Group has for advocating animal welfare in this important community sector that covers animals in pet shops, horses in riding centre’s, breeding cats and dogs, security dogs, animals used in the film industry and animal transporting and boarding establishments.

During phase 1 of the AAWS, this working group progressed a national standard for nonproduction animals with the Council of Australian Government’s (COAG) decision-making process.

Work was undertaken to benchmark the companion animal sector. This identified the need to have an animal population management system that provides information on euthanasia rates and where pets are sourced from. It also revealed a need to continue to improve pet wellbeing, conduct more animal welfare research and develop consistent standards nationwide.

The priority in phase 2 will be to progress the development, consultation and endorsement of national standards for cats and dogs.

Policy objectives

Key points:

The AAWS provides a national framework for engagement, covering all animals and their wellbeing.

The AAWS seeks greater consistency in approaches to animal welfare across the states and territories.

The AAWS takes a multifaceted approach, based on four major areas of work: animals, national systems, people and the international scene.

The AAWS is Australia’s response to a number of welfare issues. It addresses a range of policy objectives, including that:

the welfare needs of animals are met by the people responsible for them, in line with scientific evidence and community expectations

appropriate, balanced information is readily available for people who are making decisions on animal welfare issues

there is national consistency in welfare requirements and outcomes.

The strategy is also a response to the community expectation that governments will play a central role in maintaining and protecting the welfare of animals as a public good.

Individuals making decisions that affect the welfare of animals must be supported with information, knowledge and skills to fulfil their obligations and responsibilities. This information should be based on the best available evidence, and efforts should be made to ensure that the knowledge base is actively improved.

Guardianship

Animal welfare can involve complex ethical issues, and activities that are completely unacceptable in one context may be justified in another. Governments have a responsibility to act as guardians for animal welfare on behalf of citizens, develop and implement policy, ensure compliance and inform the community.

National consistency

The states and territories have primary legislative responsibility for animal welfare in Australia, and each has established its own laws and regulations. Stakeholders have acknowledged that inconsistencies in requirements between jurisdictions are an impediment to the development, implementation and promotion of a national approach to animal welfare.

Strategic positioning

Animal welfare is an issue of increasing importance within the international community as well as domestically, with implications for Australia’s reputation and trading position. Australia seeks to actively engage in international forums at the level of government, industry and nongovernment organisations to exchange ideas, share expertise, develop networks and partnerships, support the development and adoption of international animal welfare guidelines, and articulate Australia’s perspective.

Outcomes

The AAWS takes a multifaceted approach to delivering improved animal welfare, recognising that there are multiple areas of action and engagement. Under the four major areas of work, the strategy has the following aims:

Animals: The primary aim is to identify, understand, prioritise and act on things that have a direct impact on the welfare on animals.

National systems: Efforts will be made to reduce inconsistencies in the approaches to regulation and compliance used by different jurisdictions in Australia.

People: The delivery of improved animal welfare relies on people and their capacity to make and implement decisions, and this will guide investments to improve skills and understanding.

International: International awareness of the importance of animal welfare is growing. The strategy is a demonstration that Australia has a structured, national approach to animal welfare and allows our representatives to speak with authority.

The AAWS provides opportunities to:

strategically focus a group of experts to assist in identifying national and international emerging issues and, by keeping abreast and ahead of welfare matters generally, to offer advice on the best policy or operational response to given situations.

formalise high-level advice to all ministers, the Primary Industries Standing Committee and the Primary Industries Ministerial Council on strategic issues affecting animal welfare.

establish a process to achieve the strategic goal of national consistency in animal welfare arrangements, including legislation, other forms of regulation and industry standards.

enable the Australian community to demonstrate the value it places on animals, their humane treatment and the provision of appropriate care.

Operating environment

Key points:

Animal welfare is growing in importance for the Australian community. The AAWS is part of a network of animal welfare activities by a range of organisations.

Animals are economically, socially and culturally important for Australia.

Animal welfare is protected through state and territory legislation; standards, guidelines and codes of practice; and industry quality assurance programs. The Australian Government plays a coordinating role.

International developments in animal welfare provide guidance for the AAWS.

Animal welfare is a highly sensitive issue of growing importance. Retailers are changing product lines and marketing in response to consumer demand for ‘ethical’ products. Animal law courses are being introduced at universities across Australia. Pest animal management programs are being amended on the basis of community campaigns. Internationally, animal welfare considerations are being applied within a number of markets and are having a direct impact on trading relationships.

Animal industries form a central part of the Australian economy and generate wealth and employment across rural, regional and urban Australia. Livestock industries have a gross annual value of approximately $20 billion2; $6 billion is spent on the nation’s 33 million pet animals3; the horse sector contributes an estimated $6 billion to the national accounts; opportunities to view and interact with our unique wildlife are high on the wish-list for visitors, contributing to the $30-billion tourism industry; recreational fishing is one of Australia’s most popular pastimes and is backed by an industry worth $3 billion per year; and research advances continue to improve the health and wellbeing of both humans and animals. The challenges for animal welfare differ between species and between industries, but the need and desire to maintain, protect and improve the quality of life of animals applies across the board. Improving animal welfare contributes to the sustainability of industries and the overall Australian way of life.

In Australia, the welfare of animals is protected through legislation administered by the state and territory governments. Some industries provide an additional level of animal welfare protection through quality assurance programs. The Australian Government does not have legislative responsibility, but plays a leadership and coordination role to improve national consistency in legislation and outcome, and increase efficiency in public expenditure by reducing duplication of effort.

The AAWS is part of a network of animal welfare activities and approaches by specialist organisations, industry groups and government agencies. Australia has more than 400 organisations with a direct interest in animal welfare and the AAWS. The strategy provides a focal point and national framework for engaging all interested parties to deliver agreed national goals and objectives. It also responds to governments’ recognition that improving animal welfare outcomes is in the public interest.

The AAWS builds on Australia’s current arrangements, which include legislation, standards, guidelines, codes of practice, industry quality assurance programs, education and training, research and development, broad and ongoing consultation, and acceptance of international responsibilities.

There have been significant international developments in animal welfare, and the strategy recognises the guidance provided by agreed international principles, including:

the critical relationship between animal health and animal welfare

the recognised responsibilities or duty of care of animal carers and managers to maintain and protect their animals, including by providing adequate and appropriate food and water; protecting animals from fear and distress; minimising physical and thermal discomfort; protecting animals from pain, injury and disease; and providing opportunities for the expression of normal patterns of behaviour (the ‘five freedoms’ of animal welfare)

for animals used in research and teaching, the ‘three Rs’—reduction in numbers of animals, refinement of experimental methods and replacement of animals with nonanimal techniques.

The draft Universal Declaration on Animal Welfare that is being promoted by the World Society for the Protection of Animals and supported in concept by the OIE and many governments and nongovernment organisations is also a valuable guiding philosophy for efforts to improve the welfare of animals.

Case Study:

Development of Livestock Welfare Standards

Imagine being a livestock transporter in Australia where you must adhere to strict legal requirements—but they vary in each state? Transporting operators are currently faced with these logistical difficulties every time they routinely cross a border to deliver their goods.

This question of national consistency is now being addressed by Australian Government, industry bodies and animal welfare organisations through the development of harmonized livestock welfare laws.

The welfare of livestock is currently managed by a series of Model Codes of Practice for the Welfare of Animals which is interpreted differently into individual state and territory legislation. A review of the Codes in 2005 identified ambiguity of the codes as a concern and recommended a move to national harmonization.

The review determined that under the current system, industry representatives find the codes difficult to read and access key information in a user friendly format. This poses several issues for various business transactions, in particular transport. Difference in state and territory legislation causes confusion leading to inefficiency and increased costs.

The redevelopment of the Model Codes of Practice will deliver animal welfare outcomes that meet community and international expectations and reflect Australia’s position as a leader in modern, sustainable and scientifically-based welfare practice.

An Australian approach

The AAWS has extensive contributions from program partners and key funding and leadership from the Australian Government.

The next phase of the AAWS will see a greater focus on ensuring that proposed benefits can be tracked and achieved.

Many changes will have immediate impact, but some benefits may not be realised for years or decades

The AAWS is a unique response to the challenges of managing, protecting and improving the welfare of animals. Unlike other national and multinational strategies, the Australian approach aims to deliver improvements for all animals. This strategy is not restricted to the livestock and production industries, but recognises that there is a need to address welfare issues across all animal use sectors. It also acknowledges the importance of broad engagement with industry, governments, professional associations, researchers and welfare organisations to obtain a range of perspectives, to accurately assess current and emerging issues and priorities, and to develop robust solutions.

The strategy must work within the constraints of Australia’s system of government and a very busy operating environment. Implementation of the strategy is a shared responsibility, which relies on the commitment of time, resources and funding from stakeholders across all sectors and from all levels of government. The state and territory government retain front-line responsibility for animal welfare policies and approaches, and must continue to be key partners, collaborators and contributors in the implementation of the AAWS. The Australian Government plays a leadership and coordination role, and supports the strategy with funding of approximately $1 million per year. This seed funding will leverage additional contributions to the strategy, with an estimated ratio of 1:1.2.

The AAWS and its collaborative structures have created many opportunities to share knowledge and debate how the welfare of animals can be improved across all sectors. There is a commitment to diversity of stakeholder representation, to ensure an equitable balance between industry, community welfare groups and government.

The initial phase of the implementation of the strategy (2005–09) has provided a solid foundation. The next phase (2010–14) will build on achievements to date and see further maturing and refinement of the program. In 2008–09, the Australian Government Department of Agriculture, Fisheries and Forestry commissioned an external review of the strategy, which found that generally reasonable progress had been made against the National Implementation Plan and that there was a high level of support and commitment from stakeholders. Predictably, some areas were more difficult and slower than others, and the reviewer made a number of recommendations for improvements in program design, implementation and administration.

This version of the AAWS is based on the recommendations of the review. Extensive consultation has been conducted with the states and territories and key stakeholders from industry, animal welfare and related organisations across the range of animal uses.

With an overall mission to achieve sustainable improvements in the welfare of animals, the strategy is based around four goals, each with three supporting objectives:

People: People make ethical decisions regarding animal welfare, supported by knowledge and skills.

Engage stakeholders.

Inform the community.

Create, use and share knowledge.

International: Australia is actively engaged in international partnerships and developments to improve animal welfare.

Articulate Australia’s perspective.

Collaborate internationally.

Learn from international experience.

With the maturing of the program comes a greater focus on ensuring that proposed benefits can be tracked and achieved. The outputs–outcomes– benefits approach allows a clear view of how the activities funded or supported by the AAWS will lead to change. A separate National Implementation Plan (Part 2 of this document) has been prepared to provide additional detail on key activities for the four years to June 2014. This approach is consistent with Australian Government guidelines for improved delivery of projects and programs.

Although many changes will have immediate impact, some may not be realised for years or decades. The delivery of some benefits will require generational change.

Scope

Key points:

The AAWS builds on current institutional arrangements.

The AAWS embraces a broad vision for the humane treatment of all sentient animals.

Decisions made by people have the greatest influence on an animal’s welfare.

The focus of the AAWS is the health and welfare needs of animals and their interactions with humans. The people who own, care for or have other management responsibilities for an animal have the greatest influence on its welfare. Decisions are guided by the person’s personal knowledge, skills, experience, understanding, outlook, philosophy, particular environment and economic situation, and the legislative frameworks under which they operate. The strategy reflects the high regard that Australians have for the value, care and wellbeing of animals.

The AAWS covers all Australian animals and all segments of the community, so the range of issues that need to be considered and acted on is very broad. To assist with the process, six categories of animal use or management have been identified. Each has an assigned working group that involves a range of stakeholders to identify, prioritise and manage activities. The six working groups are:

animals used in research and teaching

livestock and production animals

companion animals

aquatic animals

animals used for work, recreation, entertainment and display

native, introduced and feral animals.

The strategy has also identified three areas—research and development, education and training, and communications—that cross the boundaries of the animal sectors and require specific attention and investment. Three working groups have been established to address these areas.

The AAWS aims to help build partnerships, improve coordination, reduce duplication of effort and deliver a more effective and consistent national approach to improving the welfare of animals. There is now a greater understanding between stakeholders, recognition of differences in approaches, and understanding of timeframes for delivering improved animal welfare. Stakeholders have agreed that they need to negotiate on the practical implementation of any new animal welfare policies and practices. Behavioural change does not occur quickly, but achievements to date have provided a solid foundation for the future.

The strategy does not examine the ethics of the use of animals by humans. It aims to ensure that welfare is properly considered in any use of animals and especially that suffering is minimised, if not avoided.

The strategy will also be relevant to, and seek linkages with, a range of other national programs and structures, including the Australian Pest Animal Strategy, the Australian Framework for Landcare, natural resource management boards and catchment management authorities, the National Training Framework and the Primary Industries Education Foundation.

Case study:

Aquatic Animals

Over the last decade, there has been an increasing national and international interest in the welfare of aquatic animals. Do fish feel pain and if they do, how does this affect their productivity? The AAWS Aquatic Animals Working Group’s first priority has been to provide industry and recreational fishers with a set of scientifically-backed welfare guidelines.

The Aquatic Animal Welfare Guidelines have drawn specific attention to pain receptor studies in fish. Currently science cannot definitively say if fish feel pain. One argument suggests if fish are to experience pain in a similar way to humans they would require higher conscious processing, therefore this level of pain perception is unlikely. However alternative behavioural studies have demonstrated behavioural changes when fish are exposed to aversive stimuli.

While the jury might be out on whether fish feel pain, stress in fish has been linked to increased susceptibility to disease, repressed growth rates and poor eating quality. Therefore the adoption of recommended welfare practices, like reducing crowding pre-harvest, may produce healthier and tastier fish. The adoption of the working group’s welfare guidelines may help the seafood sector maintain existing markets and create access to new ones as consumers take increasing interest in how their food is produced.

Goals and objectives

Key points:

The goals of the AAWS focus on animals, national systems, people and the international scene.

The mission of the AAWS is to deliver sustainable improvements in the welfare of all Australian animals.

Goal 1: Animals

The welfare needs of animals are understood and met.

The primary aim of the AAWS is to deliver measurable improvements in welfare outcomes for Australia’s animals, and this is the key focus of Goal 1. This goal relies on sectoral groups being able to identify and take action to address priority animal welfare issues, risks and opportunities. It highlights the need for a solid information base covering current and emerging animal welfare issues, investments in understanding what is meant by animal welfare outcomes, and monitoring and evaluation of the results and impacts of activities under the AAWS.

Objectives

1. Monitor trends.

Ongoing strategic analysis to:

understand the current state of, and changes in, scientific findings and community expectations regarding animal welfare

Goal 2: National systems

Australia is a federation of six states and two territories and, under the Australian Constitution, the states and territories have responsibility for establishing and enforcing animal welfare laws. Historical differences and different legislative and institutional arrangements have led to inconsistencies in animal welfare requirements in different parts of the country. Governments and the animal sectors have acknowledged that these inconsistencies are undesirable. This goal focuses on the development and implementation of systems, tools and processes to ensure that regulatory and co-regulatory arrangements in different jurisdictions require an agreed minimum level of animal welfare.

Objectives

4. Understand drivers, impediments and opportunities.

Ongoing assessment and reporting of the Australian animal welfare system, including capacity, policies and programs.

5. Cooperate for consistency.

Development, implementation and adoption of national products (standards and guidelines, codes, position statements).

6. Collaborate for efficiency.

Commitment from all program partners to maximise progress and achieve national consistency.

Goal 3: People

People make ethical decision regarding animal welfare, supported by knowledge and skills.

The delivery of sustainable improvements in the welfare of animals will depend on successful engagement with people, and development and delivery of balanced information about animal welfare issues and approaches to support decision making. Key program partners include the individuals and organisations that represent the owners, carers and managers of animals; people who provide information, advice and education to others on animal issues; developers and implementers of policies and legislation; and organisations providing information to consumers of animal products and services. This goal aims to build a platform for improving knowledge and understanding, and translating that knowledge into the actions and behaviours that will improve the welfare of animals.

Objectives

7. Engage stakeholders.

Engagement of stakeholders and development of strategic organisational linkages to ensure that the AAWS appropriately considers and addresses the diversity of community views and has a strong network of partners to support delivery of the program goals.

8. Inform the community.

Implementation of a strategic communication program for Australian and international communities to raise awareness and understanding of animal welfare issues, the activities under the AAWS and improvements achieved in animal welfare.

9. Create, use and share knowledge.

Development of animal welfare capacity and capability in Australia through investments in research and development, extension, and education and training.

Goal 4: International

Australia is actively engaged in international partnerships and developments to improve animal welfare.

The AAWS is Australia’s response to the challenges of animal welfare and the changing expectations and awareness of the Australian and international communities. It is unique in its scope and reach across all animal sectors.

A range of national and multinational responses have been made to the challenge of improving the welfare of animals. This goal recognises that Australia does, and should, participate as a member and leader of many international forums, and that proactive participation can deliver significant benefits. Participation includes consolidating Australia’s reputation and trading position as a country with high animal welfare standards, a commitment to continuous improvement and a willingness to share our experiences to assist other countries. International participation also helps Australia to understand, equal or exceed the levels of animal welfare being delivered in other countries.

Australia’s international partnerships have a range of purposes: science and research, trade and commerce, country relationships, collaborative alliances, capacity building, technical cooperation and information exchange. AAWS stakeholders have significant opportunities to build international networks of influence, strengthening Australia’s animal welfare reputation and position, and improving animal welfare in Australia and overseas.

Objectives

Appropriate application of Australia’s expertise and resources to international animal welfare activities.

12. Learn from international experience.

Active international application and sharing of experience and expertise to improve the welfare of animals.

Case study:

Animals in the wild working group

A set of unique challenges face the Animals in the Wild Working Group. The emotive and highprofile issue of reducing feral animal populations can be thorny and require complex solutions, or even the development of new technologies, that compliment animal welfare ideals

The working group—made up of government departments, universities, animal advocates, pest control and sustainable use groups, animal holding and care groups—have tackled such logistical problems head on, identifying all practical issues and the intended methodology to overcome them.

An example of this includes a goal to reduce feral camel numbers, standing at over one million, to a herd of 350,000 by developing standards for mustering, long-haul truck transport, commercial slaughter and aerial shooting.

While diverse in opinion and their involvement with wild animals, the group operates with the mutual understanding that whether animals are killed, conserved or relocated, they must be treated as humanely as possible.

This group has helped harmonise welfare legislation between the jurisdictions and developed the feral animal control Codes of Practice and Standard Operating Procedures. It has also developed a protocol to rank the humaneness of killing techniques and commissioned a study into the factors leading to success or failure of translocation programs for native animals.

Benefits

Key points:

Benefits are the measurable improvements that result from programs.

Four high-level benefits have been identified for the AAWS for 2010–14.

Benefits are the measurable improvements that result from program activities. Benefits statements are critical for monitoring and evaluating program performance, as they outline a set of expectations that can be assessed against outcomes.

Qualitative benefits recognised from the foundation phase of the AAWS include:

national agreement, through the Primary Industries Ministerial Council, of the importance of animal welfare and the scope of the AAWS in setting national goals and objectives for Australia

development of a network of engaged key stakeholders, with diverse affiliations, across the sectoral and cross-sectoral working groups

a managed program to engage and exchange ideas and to reach consensus on key priorities and activities

international recognition of Australia’s leadership in animal welfare as a result of the AAWS.

The AAWS is a national ‘umbrella’ strategy. It does not operate at the level of individual animal managers and carers. Furthermore, the diversity of animal welfare views and stakeholder positions means that perceptions about the benefits derived from the investment of money and resources under the strategy will also differ.

Four broad, high-level benefits have been identified for the second phase of the AAWS (2010–14):

1. Benefits for animals. As a result of achieving the AAWS outcome that activities lead to positive change in the welfare of animals

the benefit is that animals have greater wellbeing through improved levels of care and management.

2. Benefits for Australia’s animal welfare system. As a result of achieving the AAWS outcome that streamlined, efficient, transparent and successful processes are developed to deliver nationally consistent animal welfare outcomes

the benefit is that there is improved effectiveness and efficiency in processes and the application of resources to develop and implement animal welfare policies and systems.

3. Benefits for Australians. As a result of achieving the AAWS outcome that the strategy provides a basis for engagement and education of diverse stakeholder groups and interests

the benefit is that the community engages in balanced, informed debate about animal welfare issues.

4. Benefits from international efforts. As a result of achieving the AAWS outcome that Australia assists the development and delivery of improved animal welfare outcomes regionally and globally

the benefit is that Australia’s systems, expertise and reputation are enhanced through active engagement and partnerships.

To demonstrate that benefits have been achieved, effective measures, benchmarks and monitoring systems will need to be established and agreed through the AAWS expert working groups and Advisory Committee. Data will need to be collected and analysed using appropriate measures that are easy to understand and use and that are reliable, comparable and verifiable. Information needs to be collected frequently enough to track progress.

The next major review of the AAWS is expected in 2013–14.

Coordination and governance

Key points:

The Primary Industries Ministerial Council provides a mechanism for reaching national agreement on the AAWS and its implementation.

The Animal Welfare Unit of the Australian Government Department of Agriculture, Fisheries and Forestry coordinates the AAWS.

The AAWS has been established and is coordinated by the Australian Government on behalf of the strategy’s stakeholders and the broader community. Overall management and responsibility for implementation rests with the Australian Government Department of Agriculture, Fisheries and Forestry. The department is also the key agency representing the Australian Government on animal welfare matters internationally.

Key oversight for the strategy is provided by a highlevel, expert-based Advisory Committee, which delivers advice to the Minister for Agriculture, Fisheries and Forestry on animal welfare issues of strategic and national importance; makes recommendations on expenditure of Australian Government funds in the implementation of the strategy; and assists the department in setting the overall direction for the strategy, establishing priorities and creating work plans.

The AAWS also has a governance and reporting pathway through the Animal Welfare Committee, under the Primary Industries Standing Committee to the Primary Industries Ministerial Council. To ensure national agreement and the involvement of all government jurisdictions, the ministerial council endorses the strategy and its work plans. The Animal Welfare Committee coordinates the involvement of government partners in the strategy and provides specific advice on policy, funding and legislative actions to achieve nationally consistent outcomes.

The Australian Government provides funding of approximately $1 million per year to support the implementation of the strategy. Expenditure of these funds will be in accordance with annual work plans that outline key activities and projects.

The Minister for Agriculture, Fisheries and Forestry is responsible for approving expenditure of Australian Government funds.

Coordination of the strategy is provided by the Animal Welfare Unit of the Australian Government Department of Agriculture, Fisheries and Forestry.

Six technical working groups have been established, corresponding to the six identified categories of animal use, to provide a forum for discussion of the specific needs of animals, develop action plans and generate technical advice on the opportunities, impediments and drivers for each sector. Each group has representation from government, industry and sector specialist organisations, as well as animal welfare organisations.

Three cross-sectoral working groups have also been established to harness specific expertise and focus activity on general issues of communications, research and development, and education and training.

Case study:

Australian input sought on international Codes of Practice for use of animals in research and teaching

Initiated by our scientific community, The Australian Code of Practice for the Care and Use of Animals for Scientific Purposes (the Code) governs any use of vertebrate and cephalopod animals used for research, teaching or product testing in medicine, biology, agriculture, veterinary, environmental or animal sciences. The Code sets the standards and requirements to conduct these activities ethically across all AAWS sectors and emphasises the responsibilities of all involved to achieve the best possible welfare for the animals whilst still achieving innovative scientific outcomes.

Worldwide recognition of the Code has lead the International Council on Laboratory Animal Science and the Council of International Organisations for Medical Science to seek Australian representation for the Council’s Working Groups and has influenced the development of comparable documents, for example in New Zealand and Singapore. The Guidelines to Promote the Wellbeing of Animals was published in 2008 to support the Code and has also been widely endorsed as an international benchmark.

The participation of animal welfare and community representatives in the ethical review and monitoring procedures as well as public consultations as part of the revision process facilitates an awareness and broad consideration of animal welfare issues in this sector.

Figure 1: AAWS governance structure

[expand all]

Part 2: National Implementation Plan

This section focuses on the activities, resources and changes needed to create positive animal welfare environments. The National Implementation Plan describes target timeframes, expected benefits and measures of success to enable effective program management and monitoring.

The plan provides an outline of how the Australian Animal Welfare Strategy (AAWS) will be undertaken over the period 2010–14. It is based on the
Guide to preparing implementation plans of the Cabinet Implementation Unit4, using a program logic approach5. This approach recognises the interdependencies of the range of AAWS activities. It also reflects the inherent time lags between AAWS activities, and the achievement of outcomes that depend on action outside the control of the strategy, such as passage of legislation.

Introduction

The National Implementation Plan for the AAWS outlines the collective efforts for 2010–14 across the six animal sectors and cross-sectoral functional areas (communications, education and training, and research and development). It was developed in consultation with the AAWS Advisory Committee and working groups, the Animal Welfare Committee and other stakeholders.

The plan outlines how the vision and expectations of the strategy will be turned into actions and deliverables. It provides a framework and timescale for coordinated activities, investment decisions and engagement. It also highlights potential risks and assumptions about the system, commitments, available resources, and the progression from outputs to outcomes and benefits.

Implementation of the strategy is a shared responsibility, which relies on the commitment of time, resources and funding from stakeholders across all sectors and from all levels of government. In particular, the strategy will look to the state and territory governments, who are responsible for developing, implementing and enforcing animal welfare policies and legislation in their jurisdictions, to articulate how their current and proposed activities are consistent with the strategy and can support its goals and objectives.

The AAWS initiative is a national change program that aims to deliver sustainable improvements in welfare for all Australian animals. Animal welfare is of social and strategic importance. Modern societies have expectations that the quality of life should improve for domestic, livestock, working and wild animals. As custodians and caretakers, we have a duty of care to ensure that the welfare of animals is maintained and protected, and practices that have welfare implications must continue to evolve as society’s knowledge and expectations change.

The Australian Government has committed approximately $4 million to phase 2 of the AAWS. This funding will be used for specific joint initiatives to address priority issues at industry, sectoral and national levels. Co-contributions to activities under the strategy will continue to be sought from governments and other stakeholders.

Case study:

National standards for zoo animals

Unlike livestock industries which have been covered by animal welfare Codes of Practice for many years, there has never been an equivalent system for non-production animals such as zoo animals.

A major undertaking for the AAWS has been the development of national standards and guidelines to protect the health and welfare of animals kept for exhibition. This is a great example of the strength of this program and what can be achieved through partnership and commitment.

Challenges to face the working group included harmonising industry and government perceptions on animal welfare, and creating standards that both industry and regulators can relate to.

All stakeholders including industry, governments and animal welfare rights groups participated in the drafting of the guidelines which garnered valuable expertise and helped to better inform and unify the collective industry.

The outcomes focused guidelines will allow organisations to manage and document in a formal capacity and if implemented nationally will see exhibited animals kept to the same standards throughout Australia.

Due for completion in mid 2011, the project is expected to be referenced in state and territory legislation in 2012.

Strategic framework

Key points:

The vision of the AAWS is that all Australians value animals and are committed to improving their welfare.

The mission of the AAWS is to deliver sustainable improvements in the welfare of all animals.

Australia is rated as equivalent to or better than international benchmarks, following formal evaluations.

World Organisation for Animal Health and other international organisations continue to seek Australian expertise.

Forecast AAWS expenditure, 2010-14 (total = $4 007 000)

$1 167 913 (29%)

$528 818 (13%)

$1 927 269 (48%)

$383 000 (10%)

Estimated additional stakeholder contributions (total = $4 530 623)

$1 718 999

$970 500

$1 476 124

$365 000

Implementation Schedule

Table 2 shows the implementation schedule for the AAWS, and Table 3 shows the budget forecast for 2010–14.

Table 2. Australian Animal Welfare Strategy implementation schedule

Timeframe

Item

Assumptions

20 years (goal)

1. Animals: The welfare needs of animals are understood and met.

Improvements in animal welfare will be sustainable if changes are practical, feasible and realistic, and consider social, economic and environmental perspectives.

10 years (outcomes/ benefits)

The welfare of animals is considered and managed in all decisions and activities that affect it. Animals experience better levels of care, management and wellbeing.

Rate of change is linked to resources available. Coordination maximises impact of application of resources and efforts. AAWS networks provide a key to raising awareness, understanding and importance of animal welfare.

4 years (objectives)

Regular internal and external reporting of progress on animal welfare outcomes and program delivery against agreed measures and benchmarks.
(Monitor trends)

Measures are inadequate to demonstrate benefits from the AAWS investment.

Practices that result in poor welfare may continue due to a lack of national agreement on what constitutes positive welfare and how to measure it.

Insufficient resources are available for the development, implementation and enforcement of national standards, especially for nonproduction sectors. Jurisdictional budgets are reduced, limiting contributions by state and territory governments to the AAWS.

Investment in resources and operational funds by governments and the private sector are adequate to deliver the AAWS goals and agreed activities.

Foundation activities

Sectoral stock takes and gap analysis; priorities identified.

Sectoral and cross-sectoral action plans established.

AAWS Advisory Committee and working groups established.

An Advisory Committee provides governance, and subordinate working groups provide expertise, stakeholder con nection and point of reference.

Resources required

Sectoral working groups to monitor developments, set measures and benchmarks.

Identify and analyse reports by other organisations on the animal welfare system.

Governments complete and regulate a range of national standards and guidelines. Industry adopts codes of practice. AAWS stakeholders coordinate their engagement in the revision of the
Australian code for the care and use of animals for scientific purposes.

Progress guidelines on ethical decision making for use of animals in research and teaching.

Reach consensus during the development and endorsement of national products to streamline implementation and enforcement. Implement improved cross-jurisdictional arrangements. Finalise Australian Cross Jurisdictional Animal Welfare Incident Response Plan. Develop improved arrangements for dealing with animals in natural disasters.

Stakeholders engage and reach consensus on the national outputs.

There are sufficient public and private sector resources to meet the project timetables. Co-regulation supports delivery and enforcement of agreed national standards.

Highest perceived risks

Reporting agencies do not deliver information within agreed timeframes.

AAWS activities are undertaken without full understanding of the operating environment.

Stakeholders lose confidence in national processes and disengage.

Networks fail to adequately identify interested parties and experts.

Cost of the standards and guidelines process becomes prohibitive.

The communications program fails in implementation phase.

State and territory governments vary or fail to implement agreed PIMC decisions.

State and territory reductions in funding limit involvement. States and territories fail to adequately resource compliance activities. Uptake and drivers for co-regulatory quality assurance programs are lacking.

The delivery of sustainable and ongoing improvements in animal welfare will rely on people implementing better practices. People can be empowered to change by improving their knowledge and understanding, and this can be done in various ways, from provision of information through to practical training.

10 years (outcomes/ benefits)

People actively fulfil their animal welfare obligations and are assisted to make evidence-based decisions.

The AAWS provides a basis for engaging diverse stakeholder groups and interests.

Develop and begin a collaborative research program for national research needs of highest priority. Invest in research projects that build understanding of issues. Deliver education projects that enhance animal welfare capabilities.

Improved access to general, factual information is important.

Information alone is not enough to drive change.

The AAWS can deliver balanced information on the welfare of animals.

National communication and extension materials will be developed and used.

Highest perceived risk

Community, media, retailers form their views on animal welfare based on incomplete or inaccurate information.

Failure to deliver consistent, coherent and regular communications creates doubts on program management and delivery.

There is a failure to maximise opportunities through lack of coordination or lack of resources.

Funders of research and development attach a low priority to animal welfare. There is a failure to adhere to a peer-reviewed and evidence-based approach.

Diverse stakeholders will remain supportive and committed to the AAWS vision.

Working group leadership and support (chairs, executive officers). Tools to support stakeholders.

Coordinator to drive generation and delivery of content and products.

Animal welfare researcher and specialists in education and extension.

Specialist people can be identified and engaged to support implementation.

Objective 7

Objective 8

Objective 9

Goal 3 total

AAWSa

Otherb

Total

AAWSa

Otherb

Total

AAWSa

Otherb

Total

AAWSa

Otherb

Total

2010-11

$100 000

$120 000

$220 000

$192 000

$139 900

$331 900

$147 925

$61 549

$209 474

$439 925

$321 449

$761 374

2011-12

$160 000

$120 000

$280 000

$213 444

$123 400

$336844

$155 9 00

$148 950

$304 850

$529 344

$392350

$921 694

2012-13

$160 000

$120 000

$280 000

$198 000

$137 500

$335 500

$103 000

$86 625

$189 625

$461 000

$344 125

$805125

2013-14

$150 000

$120 000

$270 000

$207 000

$176 000

$383 000

$140 000

$122 500

$262 500

$497 000

$418 500

$915 500

Total

$570 000

$480 000

$1 050 000

$810 444

$576 800

$1 387 244

$546 825

$419 624

$966449

$1 927 269

$1 476 424

$3 403 693

Timeframe

Item

Assumptions

20 years (goal)

4. International: Australia is actively engaged in international partnerships and developments to improve animal welfare.

Australia has to maintain its reputation as a compassionate nation that appropriately addresses animal welfare issues in an ethical manner, and this can help support trading arrangements and relationships.

10 years (outcomes/ benefits)

Australia is a recognised leader in the development and delivery of animal welfare outcomes. Australia's expertise and reputation are enhanced through active engagement and partnerships.

Australia's reputation for high animal welfare standards is in the national interest.

Monitoring, evaluation and reporting

Monitoring and evaluation is a critical part of the program management and implementation cycle. It allows for adaptive management and improvement through the life of the program to support delivery of program goals and objectives. It also supports reporting and communication of the program outputs and outcomes.

The National Implementation Plan has been developed using a program logic framework, which shows a series of consequences, not just events. It seeks to make clear the cause-and-effect relationships between activities, outputs, outcomes and benefits. The framework also identifies key indicators and lines of evidence at each level to support program performance management.

Monitoring, evaluation and reporting processes under the AAWS will cover efficiency (program management and administration), effectiveness (delivery of outputs and outcomes) and impact (change over time and contribution).

A complete monitoring, evaluation and reporting program will be developed during 2010–11.

Performance measures

Performance measures will continue to evolve as the program is implemented and the measures are tested. Initial measures have been identified for each of the goals (Table 4). A workshop of key personnel will be held in 2010–11 to test the identified benefits statements and further articulate the program’s performance measures.

Australia is rated as equivalent to or better than international benchmarks, such as the European Union, following formal international evaluations.

World Organisation for Animal Health and other international organisations continue to seek Australian expertise.

Program reporting

Program reporting is part of the governance framework and an essential component of the stakeholder engagement and communication strategies.

Governance reports will include an annual report against the approved work plan, which will be submitted to the Minister for Agriculture, Fisheries and Forestry and through the Animal Welfare Committee to the Primary Industries Ministerial Council (PIMC).

Regular reports on activities, achievements and progress will also be prepared and distributed to stakeholders, and project information will be made available online through websites that are accessible to the public or to participants only. All projects funded through the AAWS will be expected to prepare a report for publication, outlining key results.

Accountability and management

The AAWS is a broad, collaborative program with a distributed decision-making framework. It needs to be accountable to:

the general public, because it addresses an issue of community importance and public good, and involves expenditure of public funds

stakeholders who are directly involved and also make contributions

state and territory governments, who provide support for implementation, as well as additional resources and input

the Minister for Agriculture, Fisheries and Forestry, who is responsible to the Australian Parliament for expenditure of government funds under the program.

Accountability to the general community will be delivered through progress and output reports and other communication products, which are made publicly and widely available.

As well as these reports, stakeholders will be provided with additional information and engagement opportunities through meetings and workshops, direct communication activities (such as regular newsletter updates) and access to a secure, collaborative online service.

The PIMC provides national endorsement of the strategy and the implementation plan (see Figure 1), representing the commitment of the Australian and state and territory governments to the aims of the program and delivery of its outcomes and benefits.

Progress on the implementation of the strategy will be reported to the council annually.

The council is supported in its work by the Primary Industries Standing Committee, whose endorsement of the strategy and the implementation plan provides the commitment of the departments of agriculture and primary industries to the strategy’s successful implementation and the involvement of personnel.

The standing committee receives advice on animal welfare issues from the Animal Welfare Product Integrity Taskforce, which oversees and directs the work of the national Animal Welfare Committee. The Animal Welfare Committee brings together all of the state and territory, Australian and New Zealand government agencies with responsibility for the development, implementation and regulation of animal welfare policies and standards. The annual report prepared for the ministerial council and delivered through the subcommittees will provide formal accountability for the strategy to the Council of Australian Governments framework.

Details of the relevant government committees and agencies can be found in
Attachment 1.

The Minister for Agriculture, Fisheries and Forestry has specific responsibilities with regard to approving expenditure of Australian Government funds through the strategy. Specific accountability provisions will apply to ensure that the minister has sufficient information to support decisions and to be assured that the expenditures are appropriate and well managed and achieve results. The minister will be provided with reports and briefings, in person and in writing, from the Advisory Committee and the department on animal welfare issues, recommendations for expenditures, and implementation of the strategy, its progress and its outputs.

Management and administration

The implementation of the strategy will be coordinated by the Australian Government Department of Agriculture, Fisheries and Forestry (DAFF) on behalf of the stakeholders. The department is responsible for ensuring that expenditure of Australian Government funds is efficient and effective, in line with the approved aims and objectives of the strategy and in accordance with the requirements of the Australian Government. It will manage the administration of grants funded through the program and the purchase of goods and services.

Consistent with the department’s project management approach, the departmental General Manager with responsibility for animal welfare will be the project sponsor. The sponsor will be accountable for the success of the strategy. Their role includes championing the strategy within the department, ensuring that resources are provided, removing obstacles the program managers cannot remove on their own and taking recommendations for improvement to the Advisory Committee, the national Animal Welfare Committee, the department’s senior executive and the minister.

As program manager, the department will be accountable for implementation of the strategy, ensure a suitably qualified and sufficiently resourced team is available to manage activities, provide direction and oversight to projects, develop recommendations for improvement and liaise between the strategy’s sponsor, Advisory Committee and stakeholders.

The department will develop an annual work and expenditure plan for the program, in conjunction with the Advisory Committee, the national Animal Welfare Committee and the strategy’s sectoral and cross-sectoral working groups. The work plan will be submitted to the minister for approval of expenditure of Australian Government funds and to the PIMC for national endorsement. The department also has responsibility for monitoring and evaluating progress and for producing an annual report against the approved work plan.

The Advisory Committee has responsibility for providing oversight for the strategy, setting its broad direction, making recommendations regarding projects and resources, and delivering advice to the minister and the department on current and emerging issues of significance. Terms of reference and engagement for the Advisory Committee are provided at
Attachment 2.

The Advisory Committee sets the terms of reference for the sectoral and cross-sectoral working groups and endorses the identified priorities and projects as being consistent with the strategy’s overall goals and objectives. The Advisory Committee will work closely with the department and the national Animal Welfare Committee. The Chair of the Animal Welfare Committee is a member of the strategy Advisory Committee, and the Chair of the Advisory Committee is a member of the Animal Welfare Committee.

The chair of the Advisory Committee will be the spokesperson for the program.

The expert sectoral and cross-sectoral working groups are technical reference panels that are responsible for assessing the program’s goals and objectives at an operational and sectoral level to develop action plans and undertake projects. Terms of reference for the working groups are provided at
Attachment 3.

The members of the working groups connect the AAWS with its external networks. They are expected to promote animal welfare and the strategy, provide advice on current and emerging issues, and deliver feedback to the Advisory Committee and department on implementation. They are also expected to identify opportunities for, and secure, co-contributions to activities and projects to assist delivery of the program’s goals.

Risk management

The implementation schedule identifies a number of risks that could affect the delivery of the strategy’s goals and objectives. These risks have been assessed using a standard risk assessment framework (Table 5) to highlight those with the greatest likelihood and greatest impact. The results are shown in Table 6.

Table 5. Risk assessment framework

Low likelihood, high impact

Medium likelihood, high impact

High likelihood, high impact

Low likelihood, medium impact

Medium likelihood, medium impact

High likelihood, medium impact

Low likelihood, low impact

Medium likelihood, low impact

High likelihood, low impact

Table 6. Assessment of identified risks

Objective 1: Monitor trends

Measures are inadequate to demonstrate benefits from the AAWS investment.

Objective 2: Act on key issues

Practices that result in poor welfare may continue due to a lack of national agreement on what constitutes positive welfare and how to measure it.

Objective 3: Deliver improvements

Insufficient resources are available for the development, implementation and enforcement of national standards, especially for nonproduction sectors.

Assumptions

There is adequate investment in resources and operational funds by governments and private sector to deliver the AAWS goals and agreed activities.

Objective 4: Understand drivers, impediments and opportunities

AAWS activities are undertaken without full understanding of the operating environment.

Opportunities to contribute and engage are curtailed by budget restrictions (depends on state/territory and Australian Government departmental budget allocations).

Objective 12: Learn from international experience

Australia is bypassed in international collaborations due to loss of expertise or loss of resources, leading to an inability to participate (risk could be higher impact if welfare becomes a trade requirement).

Assumptions

International perceptions of Australia's animal welfare approach and practices affect Australia's ability to influence international negotiations and Australia's trading relationships.

Risk management strategies

Risk management for the strategy is overseen by the Advisory Committee, PIMC arrangements and DAFF.

The implementation framework developed for phase 2 is very clear about expectations and outputs. Regular reporting will improve transparency and accountability, increasing the likelihood that problems or concerns will be identified early and appropriate corrective action taken.

As an investment of Australian Government funds, the program is subject to the Australian Government risk management framework for program administration. The department’s risk management requirements apply.

International developments will be monitored through engagement of AAWS stakeholders and the Australian Government with the World Organisation for Animal Health (OIE) and their participation in a range of international forums on animal welfare.

Focus on evidence-based decision making and provide appropriate levels of balanced information on issues of contention or concern.

Invest in research and development to build an evidence base, which will become accessible through communication channels.

Goal 2: National systems

State and territory governments vary agreed Primary Industries Ministerial Council decisions, which undermines confidence and trust in the process, causing key stakeholders to disengage.

Agreements at the national level follow extensive consultation with stakeholders and build expectations about implementation and delivery. Variation at a state/territory level without equivalent stakeholder consultation can create distrust.

Explore development of more formal mechanisms for better understanding of roles and responsibilities.

Improve management of stakeholder expectations through information on the limitations of national agreements.

Goal 3: People

Community, media, retailers form their views on animal welfare based on incomplete or inaccurate information.

Much of the community and city-based consumers are unaware of animal welfare issues first hand and have limited perspectives on complex issues.

Develop and distribute information from the strategy that is balanced and based on contemporary evidence and expertise.

Use experts to develop position statements on complex issues. Implement the communication strategy and ensure broad access for the general community.

Goal 4: International

International perceptions of Australia's animal welfare approach and practices affect Australia's ability to influence international negotiations and Australia's trading relationships.

Current relationships and Australia's reputation could falter due to poor ratings in external audits or adverse media around particular practices, resulting in loss of markets and trading opportunities.

Build relationships for technical and policy exchange and research partnerships, including assisting with and providing leadership for regional animal welfare strategies.

Work proactively within the international community for recognition of equivalence in delivery of welfare outcomes through Australia's practices and procedures.

Stakeholder management

Detailed analysis undertaken for phase 1 of the AAWS identified more than 400 stakeholder organisations for the strategy, covering governments; advisory bodies; education, research and training organisations; Indigenous communities; industry and business; nongovernment organisations; and the veterinary and animal health sectors. Most Australians are involved in using animals directly or indirectly.

If the strategy is to deliver measurable differences in welfare outcomes for Australian animals, it will need to be accessible to all Australians and influence the behaviour of many. Limited funding means that large-scale information or awareness campaigns are not feasible, nor are investments in direct programs to change practices at an industry or sectoral level (for example, industry adjustment packages or subsidies).

However, the strategy’s projects, seminars, workshops, conference, committees, and working and writing groups have already engaged hundreds of people in implementing the strategy. Through their personal and professional networks, participants reach many more people and connect into other networks, creating a critical mass of animal welfare advocates driving positive change. The program has developed significant social capital and goodwill to date, and phase 2 will aim to harness this to leverage outcomes.

Good stakeholder management requires, and is supported by, a solid communications strategy, but stakeholder management extends beyond providing information and developing products. Communications approaches can help to keep participants up to date with developments, informed of activities and engaged with the common vision. But the AAWS will also need to influence, empower and enable stakeholders to take action that supports and is consistent with the goals and objectives. This requires clear statements of roles, responsibilities and expectations. Tools and resources that assist and support stakeholder action will be developed and implemented, including online collaborative spaces that facilitate discussion, reporting of progress and delivery of program outcomes.

The working group structure provides a solid platform for stakeholder engagement and coordinated action to address key animal welfare issues at practical levels. The funds available through the Australian Government will provide necessary impetus to drive projects that address strategy priorities.

To operate effectively, each of the working groups needs to have clear priorities expressed in an action plan aligned with the overall strategy and must be able to engage in robust discussion. Although it is expected that most working group activity will occur through email, online collaboration and teleconferences, meetings of the working groups are also needed, at least annually. These meetings will assist the groups to build motivation for the strategy and its aims, cement relationships and networks, and gain a richer understanding of the different perspectives. Funding from the Australian Government will be used to support these meetings, including covering participants’ travel costs, except for representatives of government agencies (whose costs will be covered by their jurisdictional agency, in line with convention and as part of the general contribution from governments to the strategy).

Each group will have a chair and an executive officer. The chairman will lead meetings, facilitate debate, represent the group in appropriate forums, champion group activities and be accountable to the Advisory Committee for group progress against agreed action plans. The executive officer will coordinate group operations, collate feedback, track projects, develop progress reports and deliver group contributions to the program’s regular communication and reporting activities. Any expenditure of Australian Government funds in relation to group operations will require approval from and be coordinated by DAFF.

In addition to relationships within the working groups, relationships between the groups and across the entire participant base need to be supported and nurtured. An annual national stakeholder workshop will be held to enable the Advisory Committee and DAFF to directly engage with stakeholders, gather feedback, affirm priorities, encourage networking, and generate momentum and enthusiasm for the next 12 months of work.

In line with the principle of continuous improvement, all stakeholders are encouraged to identify opportunities for improvements in program management and implementation.

Communications plan, 2010–14

The communication program provides a basis for stakeholder management and supports reporting, accountability, transparency, engagement and promotional aims. Many of the sectoral working groups have identified communication projects among their top priorities for action during phase 2.

The communication program has two primary objectives:

to increase awareness and understanding of the importance of sound practices in managing and ensuring the welfare of animals

to increase awareness of the various roles and responsibilities in delivering a duty of care for the welfare of animals.

Many stakeholders already have active communication programs, and the AAWS does not wish to add to the ‘noise’ in the operating environment. Instead, it aims to work with stakeholders, coordinate activities, provide funding support and strategic advice, and facilitate partnerled communication projects consistent with the strategy’s goals and objectives. Where a need has been identified, the strategy will produce and distribute general information on animal welfare and on the strategy itself.

Eight categories for communication partners have been identified to refine and direct work under the communication program (Table 8). Of these, four groups will have priority, as they are critical to the overall success of the program. It is expected that communication products and activities will flow through to the other groups without a need for them to be directly targeted.

The eight identified partner categories are:

strategy participants

animal welfare policy developers and regulators

animal welfare advisers and educators

animal users, carers and managers

the general Australian community

the media

potential funders

the international community.

The first four in this list are the priority groups for phase 2.

In addition to activities targeting one of more of the priority groups, some other supporting activities will assist the successful implementation of the communication plan. These include:

a mapping exercise to identify existing communication networks and pathways

development of flexible templates to be used by program partners in producing reports, discussion papers, presentations and fact sheets

use of online collaboration tools to support and engage participants and track progress

implementation of a web service to ensure public accessibility to information about the AAWS and its investments and activities, related information from program partners and links to sources of additional materials.

Quality assurance

Quality assurance means assuring the integrity and probity of all processes undertaken to implement the AAWS on time and on budget. It also involves monitoring progress against milestones and within budget.

As outlined above (under ‘Management and administration’), program management and expenditure of Australian Government funds will follow all DAFF requirements.

The improved work planning and progress reporting will deliver regular accountability and assurance checks for stakeholders. An independent, external review of the program in 2013–14 will provide an additional check on operations and outcomes.

Table 8. Communication partners and desired outcomes

Partner category

Coverage

Desired relationship

Success measures

Priority tactics

Potential activities

Strategy participants

People and organisations directly involved in the implementation of the strategy, including committee, working and writing group members, and other project team members

Encourage and empower reporting of AAWS activities by participants (including projects) at conferences and meetings.

Regular update newsletter.

Online collaboration tools to support networking, learning and feedback.

Working group meetings.

National stakeholder workshop.

Website.

Policy developers and regulators

People and organisations involved in the development and implementation of government, industry or organisational animal welfare policies or controls, including all levels of government, industry, nongovernment organisations, enforcement agencies and animal welfare inspectors

Use of evidence for the development of policy

A consultative approach and consistency in the implementation of policy and regulation

Awareness of the value that the strategy can provide

Recognition of the strategy and its benefits at senior levels; increased understanding of animal welfare issues among policy makers

Ensure animal welfare policy developers and regulators are aware of the AAWS and relevant work in progress.

Encourage and support partner organisations to include positive animal welfare and AAWS messages in policy briefings.

Incorporate the AAWS into the work programs of Animal Welfare Committee members.

Online collaboration tools to support networking, learning and feedback.

Discussion papers on key issues.

Project reports.

Workshops and seminars.

Website.

Animal users, carers and managers

People and organisations who have direct responsibility for delivering animal welfare, across the sectors for livestock; aquatic animals; companion animals; animals used in research; native, introduced and feral animals; and animals used for recreation, entertainment and display

Understanding of their responsibilities for animal welfare

Commitment to improve animal welfare

Mutual respect and confidence in advice provided through the strategy

Increased recognition and awareness of projects; increased use of resources developed through the strategy; greater recognition of responsibilities for animal welfare

Biosecurity Queensland, Queensland Department of Employment, Economic Development and Innovation

South Australia

South Australian Department of Environment and Heritage

Department of Primary Industries and Resources, South Australia

Tasmania

Tasmanian Department of Primary Industries, Parks, Water and Environment

Victoria

Victorian Department of Primary Industries

Western Australia

Western Australian Department of Agriculture and Food

Western Australian Department of Local Government and Regional Development

New Zealand

Ministry of Agriculture and Forestry

Observers

Animal Health Australia

Commonwealth Scientific and Industrial Research Organisation

Chair, Australian Animal Welfare Advisory Committee

Attachment 2: Terms of reference and engagement of the Australian Animal Welfare Advisory Committee

Introduction

The Australian Government recognises the importance of animal welfare and has committed approximately $1 million per year from 2010–11 to 2013–14 to implement the Australian Animal Welfare Strategy. The Australian Animal Welfare Advisory Committee has responsibility for providing oversight for the strategy and its implementation, setting the broad direction, making recommendations regarding project funding and resource use, and delivering advice to the minister and the Department of Agriculture, Fisheries and Forestry on current and emerging animal welfare issues of national or strategic significance.

Membership of the Advisory Committee is on the basis of skills and knowledge, rather than representation of a particular sector, organisation or industry. Collectively, the Advisory Committee must have demonstrated skills across industry and public policy, strategic planning and implementation, animal health and welfare, program management, research management, education, public affairs and communications.

The chair of the Animal Welfare Committee will be a member of the Advisory Committee.

Terms of reference

To be advocates for and drive the implementation of the Australian Animal Welfare Strategy.

To foster the involvement of the full spectrum of opinion in animal welfare in the development and implementation of the Australian Animal Welfare Strategy.

To advise the Primary Industries Ministerial Council, through the Minister for Agriculture, Fisheries and Forestry, on nationally significant animal welfare issues and the implementation of the strategy.

To identify issues/gaps in the existing animal welfare system in Australia and to provide advice on key performance indicators, priority work areas to address possible solutions and interim measures.

To provide oversight of specific action plans in each sectoral and cross-sectoral group under the strategy.

To establish a framework, including who will have carriage for the ongoing monitoring and review of animal welfare outcomes.

Modus operandi

The Advisory Committee will meet in person and by teleconference as necessary.

The department will provide technical support and secretariat support to the Advisory Committee.

The department will fund travel, accommodation costs and pay a per diem sitting fee in line with Remuneration Tribunal guidelines for non-government members. It is assumed that government agencies will contribute ‘in-kind’ salary time of any involved staff.

The Chairman of the Advisory Committee will be an observer on the Animal Welfare Committee, and the Chairman (or their delegate) of the Animal Welfare Committee will be a member of the Advisory Committee.

Terms of engagement

Members of the Advisory Committee are appointed on the basis of their skills, knowledge and expertise, not as organisational representatives.

Committee members should be appointed on the basis of overlapping four year terms except in the period to 30 June 2010.

New appointments will continue to 30 June 2014.

Attachment 3: Terms of reference and engagement of Australian Animal Welfare Strategy working groups

Terms of reference

For their sector:

To be advocates for and drive the implementation of the Australian Animal Welfare Strategy (sectoral action plan).

To foster the involvement of the full spectrum of opinion in animal welfare in the development and implementation of the Australian Animal Welfare Strategy with respect to their sector.

To develop advice and recommendations for the Australian Animal Welfare Advisory Committee on nationally significant animal welfare issues.

Ms Nicola Hinder, Australian Government Department of Agriculture, Fisheries and Forestry (2008–09)

Mr Simon Murnane, Australian Government Department of Agriculture, Fisheries and Forestry (2009–10)

The Advisory Committee would like to acknowledge and thank everyone who has contributed to the strategy since its inception, particularly the members of the sectoral and cross-sectoral working groups whose time and effort has been instrumental in delivering achievements to date. We apologise for any omissions from the following participant lists. Omission is unintentional.

Sector committees

Animals used in research and teaching

Mrs

Elizabeth

Grant (Chair)

National Health and Medical Research Council

Dr

Steve

Atkinson

NSW Animal Welfare Advisory Council

Dr

Simon

Bain

Australian National University

Dr

Robert

Baker

Department of Primary Industries and Resources, South Australia

Dr

Mary

Bate

University of Newcastle

Mr

Arthur

Blewitt

Agri-Food Industry Skills Council

Ms

Yvette

Chen

Victorian Department of Primary Industries

Mr

Craig

Cornwall

Australian Government Department of Education, Employment and Workplace Relations

Dr

Geoff

Dandie

Australian and New Zealand Council for the Care of Animals in Research and Teaching

Mr

Alan

Fried

Victorian Department of Primary Industries

Ms

Helen

Gregoriou

Jacobsen Entertainment Group

Prof

Paul

Hemsworth

Animal Welfare Science Centre

Dr

Mark

Lawrie

Australian Veterinary Association

Ms

Jude

Nettleingham

Motomoda

Dr

Denise

Noonan

University of Adelaide

Dr

Mike

Rickard

Animal Welfare Science Centre

Prof

Margaret

Rose

University of NSW and the Centre for Values, Ethics and the Law in Medicine at the University of Sydney

Animal used for work, recreation, entertainment and display

Mr

Matthew

Crane (Chair)

Industry & Investment NSW

Mr

Grant

Baldock

Equestrian Federation of Australia

Dr

Linda

Beer

Greyhounds Victoria

Mr

Glenn

Buckingham

Delta Society Australia

Ms

Mia

Cobb

Guide Dogs Victoria

Mr

Steve

Coleman

RSPCA New South Wales

Mrs

Sally

Collins

Poniewood Stud

Mrs

Barbara

Cooper

National Kelpie Council

Ms

Hollee

Curran

Delta Society Australia

Ms

Hayley

Findlay

Zoo and Aquarium Association

Mr

Andrew

Harding

Australian Racing Board

Mr

Hunter

Jones

Australian Horse Industry Council

Mr

Warren

Lehmann

Biosecurity Queensland, Queensland Department of Employment, Economic Development and Innovation

Mr

John

Le Mare

Circus Federation of Australasia

Ms

Tull

Lutterall

Australian Equine Welfare Association

Mr

Greg

McDougall

Biosecurity Queensland, Queensland Department of Employment, Economic Development and Innovation

Professor

Paul

McGreevy

University of Sydney

Dr

Andrew

McLean

Australian Equine Behaviour Centre

Ms

Jade

Norris

RSPCA Australia

Mr

Michael

O'Brien

Cairns Tropical Zoo

Mr

Geoff

O'Neill

Australian Quarantine and Inspection Service

Mr

John

Osborne

Australian Professional Rodeo Association

Ms

Wendy

Parsons

Animals Australia

Mr

Mark

Pearson

Animals Australia

Ms

Gail

Ritchie

Tamworth Regional Council

Dr

Don

Robertson

National Kelpie Council

Ms

Lynette

Shanley

Primates for Primates

Ms

Katrina

Sharman

Voiceless

Ms

Miranda

Sherley

RSPCA Australia

Mr

Brian

Sherman

Voiceless

Dr

Rick

Symons (Chair, 2006-09)

Biosecurity Queensland, Queensland Department of Employment, Economic Development and Innovation

Ms

Christina

Urso-Cale

Australian Equine Welfare Association

Mr

Franz

Venhaus

Equestrian Federation of Australia

Ms

Erna

Walraven

Taronga Zoo

Mrs

Jan

Wilson

Greyhounds Australia

Aquatic animals

Mr

Justin

Fromm (Chair)

National Aquaculture Council

Dr

Rod

Andrewartha

Department of Primary Industries, Parks, Water and Environment, Tasmania

Australian Animal Welfare Strategy and National Implementation Plan 2010-14

April 2011 PIMC endorsed edition

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